I guess all I can say is thats how we programmed it. A job must start with a Job command because to do the Tool Select requires info off the job setup- like material. The second op must be a tool, because you cannot handle a third op without a tool. I guess there are cases where you might move a tool into the second place, but it would get hard to test all the conditions that worked.
So, I guess on this one I just have to say "thats the way it is, get used to it"